Riders for NREGA: Challenges of backward districts

The 200 backward districts where the NREGA is being implemented make the Act more desirable
but at the same time less feasible. Their unique socio-economic and governance problems better
be understood for the NREGA to be effective.

The 200 backward districts, identified by the Planning Commission (See box: Measuring
Backwardness), will pose major challenges to the implementation of the NREGA because of their
special problems. They are the least developed areas of the country comprising mostly marginal
farmers and forest dwellers. In many of these districts poverty has increased despite consistent
focus of several poverty eradication programmes. Governance has little or no presence in most of
these distric ts.

The NREGA with the aim to reduce poverty is thus desirable for these districts. The NREGA can
target development using huge demand for casual jobs. However, the absence of governance will
make the implementation difficult. It is thus imperative to understand the complex socio-
economic and governance challenges of the backward districts. This will help implement the
NREGA in an effective way. And for the NREGA, these districts will decide its overall success.

A difficult constituency
Widespread poverty is a major feature with all these districts. A large number of them are
located in the arid and semi–arid regions with 94 districts covered under the Drought
Prone Areas Programme (DPAP) and 8 districts covered under the Desert Development
Programme (DDP)1.

The socio economic indicators of most of these districts are generally below the national average.
Out of these 200 districts, 148 have literacy lower than the national average (63.58%) while the
rate of female literacy in 154 districts is lower than the national average of 54.16%. Also, the
proportion of SC/ST population in most of these areas is higher than in other areas. In 41 of them
(which does not include Jamtara, Latehar, Simdega, Sraikela-Kharsawan districts of Jharkhand for
which census 2001 figures are not available) STs constitute majority of the population2.

These districts are also the most backward regions in terms of connectivity. There are 21 districts
in the Himalayan region and the North East that are completely mountainous. Besides, a number
of districts in Jharkhand, Chattisgarh, Maharashtra, Madhya Pradesh, Andhra Pradesh and Orissa
have hilly terrain. There are also wide variations in the size and population of the districts.

Socio-economic profile
These districts are primarily agricultural and in 115 districts, the percentage of agricultural
labourers in the total rural working population is higher than the national average of 33 percent,
indicating the large-scale landlessness in these districts combined with lack of effective
employment opportunities in the non-agricultural sector. The result is lower incomes for a large
section of the rural population contributing towards the backwardness of these districts apart from
agro–climatic and physiographic conditions.

1
Second Administrative Reform Commission Report, Government of India, July 2006
2
Based on Census 2001 report figures
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Less governed
Panchayati Raj Institutions are the designated agencies for the implementation of NREGA. The
village Panchayat will implement at least 50 percent of total works. There are 61,763 village
Panchayats in the 200 districts as compared to 1894 block Panchayats. So the number of
implementing agency is very high and they are very diverse in their political and socio-economic
structures. Currently the ministry of rural development claims that the village Panchayats are
implementing close to 83 percent of total NREGA works while others including independent
implementing agencies and block Panchayats are implementing around 17 percent of works.

However, in some of the 200 districts, Panchayats do not exist, or are non-functional and the
Gram Sabhas which are require to choose the shelf of projects are dormant in some of the cases.
The second administrative reform commission report is very vocal in pointing out that in many of
the districts the local governance is non-existent.

Out of the 200 districts, 119 are in seven states: Bihar, Chattisgarh, Jharkhand, Madhya Pradesh,
Orissa, Rajasthan and Uttar Pradesh. Except Rajasthan, all the six states are affected by Left
extremism. Altogether 64 districts are severely affected by extremism. There are districts where
the Panchayats are non-existent, non-functional due to the problem of not having regular and
dedicated functionaries. So the first challenge is to bring back governance to these districts.

While on the one hand these districts’ Panchayats are not that well governed, on the other hand
the NREGA puts further governance pressures. Each Panchayat has to make a perspective plan
and annual plans for implementing the scheme. The perspective plan is an extensive exercise that
includes charting of the village’s resources, its poverty, its demands, work situations and based on
these facts prescribing a template for future development requirements. The annual plan involves
identifying needy people, scooping works for them in advance and also prepare horde of accounts.

The nature of local governments varies considerably in these 200 districts as the constitution of
local bodies in the Fifth Schedule areas will be considerably different from those falling under the
Sixth Schedule Areas, such as, Mizoram and Meghalaya, where Part IX of the constitution is not
applicable.

In the areas under the Fifth Schedule of the Constitution, where as many as 63 of these backward
districts are located, the quality of local bodies was expected to improve after the enactment of the
Panchayats (Extension to the Scheduled Areas) Act, 1996. So, it is the success in the
implementation of PESA, which will have a bearing effect on the implementation of NREGA.

Though most states in the Fifth

Schedule Areas have enacted requisite
compliance legislations by amending
the respective Panchayati Raj acts,
most states are yet to amend the
subject laws and rules which are
inconsistent with those in PESA after
December 1997, and still continue to
be followed.

The size and area of Gram Panchayats

also varies considerably and these
variations have a direct impact on the
on the norms for administrative

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staffing thereby making the delivery mechanism for all the 200 districts untenable.

There is ample evidence that the delivery of basic public services, particularly those intended to
benefit the poor and weaker sections, has functioned relatively ineffectively in the backward
districts, even when funds have not been a constraint. Delivery of basic public services in these
backward districts has suffered due to, on one hand, weak administration, understaffing and lack
of motivation and on the other, large-scale leakages.

There is need to recognise that conditions prevailing in these backward districts may impede the
smooth flow of funds for the implementation of NREGA. The usual channels for transfer of funds
in the more progressive states may not work in many of these districts.

Backward districts pose implementation challenges that are as varied as the terrain is inhospitable
and thereby the approach of “one-size-fits-all” is not feasible. The final approach should be one
that takes into account the heterogeneity, specific problems and constraints, peculiar to each
district.

BOX

Measuring Backwardness

Attempts to identify the poorest or most backward districts in the country have been made
since 1960. A committee of the Government of India’s Ministry of Rural Areas and
Employment the previous name for the Ministry of Rural Development conducted one of
the most elaborate exercises for the ide ntification of backward districts in 1997. Headed
by EAS Sarma, who was then Principal Advisor to the Planning Commission, the
committee used a composite method with differing weights for parameters such as:

• Incidence of poverty
• Education
• Health
• Water supply
• Transport and communications, and
• Degree of industrialization.

The Sarma Committee's list of 100 most backward districts included:

• 38 districts from undivided Bihar

• 19 from undivided Madhya Pradesh
• 17 from undivided Uttar Pradesh
• 10 from Maharashtra, and
• A smaller number of districts from other states

There were no districts from Gujarat, Goa, Kerala, Punjab, Andhra Pradesh and Tamil
Nadu. The committee did not consider the northeastern states and Jammu and
Kashmir as it felt "they had problems which were specific and peculiar to them".

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 In 2002, the Planning Commission drew up another list of 100 backward districts.
This list is specific to the Rashtriya Sam Vikas Yojana (RSVY) Programme drawn up
under the Tenth Plan. It covers one or more backward districts in all states of the
country except Delhi, Goa, Bihar and Orissa. The first two have been excluded
because they have no backward districts. The other two have been excluded because
the RSVY Programme has special components for Bihar and the Kalahandi-Balangir-
Koraput (KBK) region of Orissa.

The Backward Regions Grant Fund classification is based on the RSVY classification
of districts. In addition it also uses the National Rural Employment Guarantee Act list
of districts.

Non-government organizations have also attempted to draw up lists of the backward

districts. Bibek Debroy of the Rajiv Gandhi Institute recently made a comprehensive
estimation of district-level deprivation in 2003 for Contemporary Studies, New Delhi, and
Laveesh Bhandari of Indicus Analytics. In their report, District-level Deprivation in the
New Millennium (Konark Publishers, New Delhi; 2003), they used six indicators derived
from the UN Millennium Development Goals:

• Poverty
• Hunger
• Infant mortality
• Immunization, and
• Literacy and elementary school enrolment.

They considered districts, which figured in the bottom quarter under four of these six
criteria as the 'most backward' districts in the country.

The list has 69 districts. Most of them are located in the states of Bihar, Uttar Pradesh,
Orissa and Jharkhand. Other than these states, the 'most backward' districts are found only
in Arunachal Pradesh (3 districts), Karnataka (1) and Madhya Pradesh (5).

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 Ranking of 447 Districts on Index of Backwardness*
(3 Parameters - SC & ST, Agri. Wages, Output per Agri. Worker)
*The districts with low wages, low productivity and high SC/ST population would be ranked as backward on this index.
Actual State District Total SC Agri. Output /
Rank ST Pop. Wages Agri.
in %age (Rs/day) Worker
(1991 1996-97 (Rs/Ag
Census) Worker)
(1990-93)

1 Gujarat Dangs 94.7 20.00 3143

2 Rajasthan Banswara 78.5 20.00 4279
3 Madhya Pradesh Jhabua 88.3 34.00 3287
4 Jharkhand Simdega 76.1 22.00 3162
5 Jharkhand Gumla 76.1 22.00 3162
6 Chattisgarh Bastar 73.3 28.00 4034
7 Chattisgarh Dantewada 73.3 28.00 4034
8 Chattisgarh Kanker 73.3 28.00 4034
9 Madhya Pradesh Mandla 66.0 23.00 2871
10 Orissa Koraput 69.3 24.00 6390
11 Orissa Malkangir 69.3 24.00 6390
12 Orissa Nabarangpur 69.3 24.00 6390
13 Orissa Rayagada 69.3 24.00 6390
14 Jharkhand Lohardagga 60.2 22.00 2694
15 Orissa Mayurbhanj 64.9 25.00 5207
16 Gujarat Dohad 50.9 15.00 3146
17 Gujarat Panch Mahals 50.9 15.00 3146
18 Orissa Sundergarh 59.5 20.00 7481
19 Jharkhand Saraikela 59.7 28.50 1362
20 Jharkhand Singhbhum West 59.7 28.50 1362
21 Madhya Pradesh Barwani 56.0 23.00 4445
22 Madhya Pradesh West Nimar 56.0 23.00 4445
23 Rajasthan Dungarpur 70.4 42.00 2969
24 Assam North Cachar Hills 68.1 35.00 6948
25 Madhya Pradesh Dhar 60.4 30.10 5718
26 Maharashtra Gadchiroli 50.9 25.00 2425
27 Orissa Phulbani 56.0 25.00 7196
28 Orissa Boudh 56.0 25.00 7196
29 Madhya Pradesh Seoni 47.8 20.00 4454
30 Orissa Keonjhar 56.0 27.00 6226
31 Madhya Pradesh Umaria 54.0 30.00 2682
32 Madhya Pradesh Shahdol 54.0 30.00 2682
33 Chattisgarh Jaspur 59.9 35.00 4267
34 Chattisgarh Korba 59.9 35.00 4267
35 Chattisgarh Raigarh 59.9 35.00 4267
36 Gujarat Valsad 57.4 27.50 8495

Report of the Task Force on "Identification of Districtsfor Wage and Self employment programmes", Planning
Commission, 2003
Actual State District Total SC Agri. Output /
Rank ST Pop. Wages Agri.
in %age (Rs/day) Worker
(1991 1996-97 (Rs/Ag
Census) Worker)
(1990-93)

37 Gujarat Bharuch 49.8 20.00 8720

38 Gujarat Narmada 49.8 20.00 8720
39 Chattisgarh Koria 59.2 37.00 3992
40 Chattisgarh Sarguja 59.2 37.00 3992
41 Madhya Pradesh Chindwara 46.7 19.00 7674
42 Assam Karbi Anglong 55.3 35.00 5167
43 West Bengal Jalpaiguri 58.0 38.00 6702
44 Rajasthan Udaipur 45.1 30.00 2828
45 Orissa Nuapada 46.9 27.00 7355
46 Orissa Kalahandi 46.9 27.00 7355
47 Madhya Pradesh Sidhi 41.8 30.00 2906
48 Maharashtra Dhule 46.2 33.00 4714
49 Maharashtra Nandubar 46.2 33.00 4714
50 Jharkhand Dumka 48.6 40.00 1700
51 Jharkhand Jamtara 48.6 40.00 1700
52 Madhya Pradesh Betul 48.3 35.00 5274
53 Madhya Pradesh Harda 48.3 35.00 5274
54 Gujarat Navasari 39.8 16.00 12559
55 Chattisgarh Bilaspur 41.1 29.00 4108
56 Chattisgarh Jangir-champa 41.1 29.00 4108
57 Chattisgarh Kawardha 41.1 29.00 4108
58 Maharashtra Bhandara 31.6 20.00 2965
59 Assam Kokrajhar 44.9 35.00 3206
60 Assam Dhemaji 50.3 40.00 4003
61 Andhra Pradesh Adilabad 35.5 26.00 3098
62 Uttar Pradesh Sonbhadra 42.5 35.00 2686
63 Maharashtra Chandrapur 33.6 25.00 3614
64 Orissa Sambalpur 44.9 30.00 9360
65 Orissa Bargarh 44.9 30.00 9360
66 Orissa Deoghar 44.9 30.00 9360
67 Orissa Jharsuguda 44.9 30.00 9360
68 Jharkhand Sahebganj 44.4 39.50 1758
69 Jharkhand Pakur 44.4 40.00 1758
70 Jharkhand Chatra 43.2 39.00 1539
71 Jharkhand Garhwa 43.2 39.00 1539
72 Jharkhand Palamau 43.2 39.00 1539
73 Jharkhand Latehar 43.2 39.00 1539
74 West Bengal Purulia 38.6 32.00 3215
75 Maharashtra Gondya 31.6 25.00 2965
76 Jharkhand Godda 33.6 30.00 1382

Report of the Task Force on "Identification of Districtsfor Wage and Self employment programmes", Planning
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Actual State District Total SC Agri. Output /
Rank ST Pop. Wages Agri.
in %age (Rs/day) Worker
(1991 1996-97 (Rs/Ag
Census) Worker)
(1990-93)

77 Madhya Pradesh East Nimar 38.2 30.00 5305

78 Madhya Pradesh Satna 31.6 25.00 3637
79 West Bengal Cooch Bihar 52.4 41.00 9443
80 Madhya Pradesh Balaghat 30.2 25.00 3294
81 Orissa Sonepur 35.9 25.00 8284
82 Orissa Bolangir 35.9 25.00 8284
83 Maharashtra Hingoli 29.9 25.00 3866
84 Maharashtra Nanded 29.9 25.00 3866
85 Chattisgarh Dhamatri 32.7 27.00 5616
86 Chattisgarh Mahasamund 32.7 27.00 5616
87 Andhra Pradesh Khammam 41.5 35.50 6678
88 West Bengal Bankura 41.7 36.00 7005
89 Madhya Pradesh Panna 35.3 33.00 4231
90 Maharashtra Aurangabad 27.1 25.00 3942
91 Assam North Lakhimpur 31.6 28.50 5309
92 Chattisgarh Rajnandgaon 35.5 35.00 3747
93 Uttar Pradesh Sitapur 32.2 30.00 5582
94 Andhra Pradesh Mahbubnagar 25.0 25.00 3475
95 Uttar Pradesh Unnao 30.6 30.00 4414
96 Uttar Pradesh Raebareli 30.0 30.00 4334
97 West Bengal West / North Dinajpur 38.8 37.00 6437
98 West Bengal East / South Dinajpur 38.8 37.00 6437
99 Uttar Pradesh Hardoi 31.5 30.00 5787
100 Jharkhand Bokaro 23.9 28.00 914
101 Rajasthan Sirohi 42.6 40.00 7798
102 Chattisgarh Durg 25.2 25.00 4633
103 Maharashtra Ahmednagar 19.6 19.00 4774
104 Bihar Gaya 29.7 34.00 1983
105 Assam Bongaigaon 28.2 31.00 3109
106 Orissa Angul 28.6 29.00 5111
107 Orissa Dhenkanal 28.6 29.00 5111
108 West Bengal Birbhum 37.6 35.00 8297
109 Maharashtra Yawatmal 32.4 34.00 4876
110 Maharashtra Thane 23.3 26.00 3541
111 Jharkhand Singhbhum East 33.7 40.00 2006
112 Bihar Vaishali 19.9 25.00 1878
113 Maharashtra Amrawati 31.9 34.00 5281
114 Rajasthan Jhalawar 29.1 30.00 6370
115 Jharkhand Hazaribagh 27.7 35.00 1583
116 Jharkhand Koderma 27.7 35.00 1583

Report of the Task Force on "Identification of Districtsfor Wage and Self employment programmes", Planning
Commission, 2003
Actual State District Total SC Agri. Output /
Rank ST Pop. Wages Agri.
in %age (Rs/day) Worker
(1991 1996-97 (Rs/Ag
Census) Worker)
(1990-93)

117 Karnataka Chitradurga 34.4 33.00 8904

118 Karnataka Davanagere 34.4 33.00 8904
119 Andhra Pradesh Warangal 30.9 35.00 4618
120 Bihar Samastipur 18.0 24.00 2414
121 Bihar Sheohar 18.0 24.00 2414
122 Andhra Pradesh Rangareddy 21.5 27.00 3124
123 Madhya Pradesh Katni 30.7 36.00 4175
124 Maharashtra Latur 21.3 25.00 4645
125 Tamil Nadu South Arcot / Cuddalore 28.3 30.00 6767
126 Tamil Nadu Villupuram 28.3 30.00 6767
127 Karnataka Bidar 29.0 33.00 5221
128 Rajasthan Dausa 44.5 50.00 5658
129 Maharashtra Wardha 29.7 34.00 5490
130 Jharkhand Giridih 25.5 35.00 1217
131 Karnataka Gulbarga 27.7 33.00 4599
132 Assam Goalpara 22.7 27.00 5107
133 Madhya Pradesh Dewas 33.2 33.00 9432
134 Orissa Balasore 26.9 30.00 6727
135 Orissa Bhadrak 26.9 30.00 6727
136 Orissa Jajpur 26.9 30.00 6727
137 Orissa Gajapati 26.0 29.00 7083
138 Orissa Ganjam 26.0 29.00 7083
139 Madhya Pradesh Chhatarpur 27.5 33.00 5316
140 Rajasthan Tonk 32.1 35.00 7885
141 Bihar Jamui 24.5 34.00 2255
142 Bihar Nawadah 24.5 34.00 2255
143 Gujarat Sabarkantha 27.1 31.00 7042
144 Uttar Pradesh Fatehpur 24.7 30.00 5859
145 Andhra Pradesh Chittur 21.6 27.00 5575
146 Uttar Pradesh Lalitpur 25.1 30.00 6300
147 Orissa Jagatsinghpur 23.7 26.00 8185
148 Orissa Kendrapara 23.7 26.00 8185
149 Orissa Cuttack 23.7 26.00 8185
150 Madhya Pradesh Guna 30.1 34.00 7575
151 Jharkhand Devghar 25.2 36.00 1929
152 Maharashtra Buldhana 16.6 23.00 4597
153 Uttar Pradesh Jalaun 27.3 30.00 8305
154 Uttar Pradesh Banda 23.2 30.00 4880
155 Uttar Pradesh Chitrakoot 23.2 30.00 4880
156 Madhya Pradesh Rewa 27.2 36.00 3810

Report of the Task Force on "Identification of Districtsfor Wage and Self employment programmes", Planning
Commission, 2003
Actual State District Total SC Agri. Output /
Rank ST Pop. Wages Agri.
in %age (Rs/day) Worker
(1991 1996-97 (Rs/Ag
Census) Worker)
(1990-93)

157 Madhya Pradesh Datia 26.4 29.60 8033

158 Bihar Araria 15.0 25.00 2157
159 Madhya Pradesh Ratlam 37.0 42.50 7467
160 Karnataka Bellary 28.1 33.00 7198
161 Rajasthan Swai Madhopur 44.5 50.00 8170
162 Uttar Pradesh Gorakhpur 22.0 30.00 4417
163 Uttar Pradesh Kushinagar 22.0 30.00 4417
164 Uttar Pradesh Mohoba 24.9 30.00 6957
165 Uttar Pradesh Hamirpur 24.9 30.00 6957
166 Uttar Pradesh Barabanki 27.0 35.00 5021
167 Tamil Nadu Tiruvannamalai 24.5 34.00 3706
168 Andhra Pradesh Vizianagaram 19.4 27.00 4838
169 Uttar Pradesh Kheri 28.1 30.00 9923
170 Andhra Pradesh Nalgonda 27.4 36.00 4782
171 Andhra Pradesh Nellore 30.3 37.00 6683
172 Rajasthan Bhilwara 26.1 35.00 4680
173 Rajasthan Rajasmand 26.1 35.00 4680
174 Assam Morigaon 29.2 39.00 4317
175 Tamil Nadu Nagapattinam 24.4 33.00 4945
176 Tamil Nadu Thiruvarur 24.4 33.00 4945
177 Tamil Nadu Thanjavur 24.4 33.00 4945
178 Maharashtra Osmanabad 18.1 25.00 5738
179 Uttar Pradesh Jhansi 28.8 35.00 7172
180 Uttar Pradesh Mirzapur 25.9 35.00 4858
181 Madhya Pradesh Sagar 29.6 37.00 6508
182 Bihar Darbhanga 14.6 27.00 1627
183 Madhya Pradesh Damoh 32.5 42.00 5336
184 Bihar Purnea 16.9 28.00 2844
185 West Bengal Pargnas 24 South 35.6 47.00 4262
186 Uttar Pradesh Kanpur Rural 25.2 30.00 8470
187 Uttar Pradesh Jaunpur 21.8 30.00 5692
188 Karnataka Raichur 25.0 33.00 6360
189 Bihar Muzaffarpur 15.7 28.00 2359
190 Bihar Madhubani 12.8 25.50 1860
191 Bihar Supaul 12.8 25.50 1860
192 Tamil Nadu Dindigul Anna/ Dindigul 19.9 30.00 4639
193 Maharashtra Parbhani 16.3 25.00 5611
194 Uttar Pradesh Azamgarh 25.6 35.00 5940
195 Madhya Pradesh Raisen 31.0 35.00 10834
196 Maharashtra Jalna 15.0 25.00 4981

Report of the Task Force on "Identification of Districtsfor Wage and Self employment programmes", Planning
Commission, 2003
Actual State District Total SC Agri. Output /
Rank ST Pop. Wages Agri.
in %age (Rs/day) Worker
(1991 1996-97 (Rs/Ag
Census) Worker)
(1990-93)

197 Tamil Nadu Tirunelveli 18.3 29.00 4940

198 Andhra Pradesh Anantapur 17.7 27.00 6000
199 West Bengal Midnapur West 24.6 38.00 3483
200 Bihar Katihar 14.4 28.00 2554
201 Rajasthan Baran 33.9 40.00 9885
202 Rajasthan Kota 33.9 40.00 9885
203 Bihar Lakhisarai 18.3 33.00 2096
204 Bihar Monghyr 18.3 33.00 2096
205 Bihar Sheikhpur 18.3 33.00 2096
206 Maharashtra Beed 14.5 25.00 5095
207 Uttar Pradesh Mau 22.1 32.00 6188
208 Andhra Pradesh Medak 22.1 36.00 3385
209 Tamil Nadu Karur 19.3 30.00 5627
210 Tamil Nadu Tiruchirapalli 19.3 30.00 5627
211 Rajasthan Bundi 39.1 45.00 11176
212 Rajasthan Ajmer 20.8 35.00 3443
213 Uttar Pradesh Sultanpur 22.4 35.00 4847
214 Madhya Pradesh Hoshangabad 33.7 38.00 12192
215 Madhya Pradesh Sehore 30.5 35.00 11787
216 West Bengal Nadia 31.4 39.00 9539
217 Tamil Nadu Pudukottai 16.9 30.00 4185
218 Uttar Pradesh Kaushambi 21.5 35.00 4303
219 Uttar Pradesh Pratapgarh 21.5 35.00 4303
220 Uttar Pradesh Ambedkar Nagar 23.2 35.00 5782
221 Uttar Pradesh Faizabad 23.2 35.00 5782
222 Andhra Pradesh East Godavari 22.1 32.00 7295
223 Bihar Jahanabad 18.4 34.00 2707
224 Tamil Nadu Ramnathpuram 18.2 31.00 4868
225 Tamil Nadu Sivagangai 18.2 31.00 4868
226 Rajasthan Jodhpur 18.1 30.00 5628
227 Rajasthan Jhunjhunu 17.3 30.00 4971
228 Bihar Siwan 11.7 25.00 4387
229 Orissa Puri 19.0 30.00 6967
230 Orissa Khurda 19.0 30.00 6967
231 Orissa Nayagarh 19.0 30.00 6967
232 Uttar Pradesh Basti 21.2 35.00 5145
233 Uttar Pradesh Sant Kabir Nagar 21.2 35.00 5145
234 Bihar Khagaria 14.5 31.00 2545
235 Bihar Madhepura 17.0 34.00 2449
236 Karnataka Tumkur 25.0 38.00 6394

Report of the Task Force on "Identification of Districtsfor Wage and Self employment programmes", Planning
Commission, 2003
Actual State District Total SC Agri. Output /
Rank ST Pop. Wages Agri.
in %age (Rs/day) Worker
(1991 1996-97 (Rs/Ag
Census) Worker)
(1990-93)

237 Bihar Saharsa 15.8 34.00 1707

238 Tamil Nadu Kamarajnagar / Virudunagar 18.7 33.00 4954
239 West Bengal Burdwan 33.6 43.00 9950
240 West Bengal Midnapur East 24.6 38.00 6246
241 Madhya Pradesh Dindori 29.5 38.00 10424
242 Madhya Pradesh Narsimpur 29.5 38.00 10424
243 Bihar Sitamarhi 12.1 30.00 1866
244 Madhya Pradesh Tikamgarh 26.9 40.00 6809
245 Andhra Pradesh Srikakulam 15.1 30.00 4624
246 Uttar Pradesh Chandauli 18.1 32.00 5716
247 Uttar Pradesh Sant Ravidas Nagar 18.1 32.00 5716
248 Rajasthan Nagour 19.9 35.00 5238
249 Maharashtra Sangli 13.1 27.00 5692
250 Bihar Kishanganj 10.1 28.00 2509
251 Tamil Nadu Theni 15.0 30.00 5356
252 Maharashtra Satara 10.2 23.00 6725
253 Uttar Pradesh Ghazipur 20.6 35.00 6443
254 Tamil Nadu Salem 20.2 35.00 6294
255 Tamil Nadu Namakkal 20.2 35.00 6294
256 Uttar Pradesh Maharajganj 19.6 35.00 5854
257 Madhya Pradesh Vidisha 24.7 36.00 9465
258 Assam Darrang 22.3 33.00 9852
259 Rajasthan Chittorgarh 34.9 50.00 7609
260 Bihar Champaran West 15.7 33.00 4433
261 Karnataka Bagalkote 18.8 33.00 7069
262 Karnataka Bijapur 18.8 33.00 7069
263 Bihar Aurangabad 23.3 39.50 5933
264 Karnataka Chamarajanagar 22.1 38.00 6080
265 Karnataka Mysore 22.1 38.00 6080
266 Assam Nalbari 26.5 43.00 6215
267 Uttar Pradesh Sidharth Nagar 16.7 35.00 4278
268 Maharashtra Jalgaon 19.1 33.00 7872
269 Tamil Nadu Kanchipuram 27.2 44.00 6446
270 Tamil Nadu Chengalpattu / Tiruvallur 27.2 44.00 6446
271 Bihar Banka 13.9 35.00 2087
272 Bihar Bhagalpur 13.9 35.00 2087
273 Bihar Champaran East 13.1 33.00 3125
274 Uttar Pradesh Bahraich 16.8 35.00 4805
275 Uttar Pradesh Balrampur 16.8 35.00 4805
276 Uttar Pradesh Shrawasti 16.8 35.00 4805

Report of the Task Force on "Identification of Districtsfor Wage and Self employment programmes", Planning
Commission, 2003
Actual State District Total SC Agri. Output /
Rank ST Pop. Wages Agri.
in %age (Rs/day) Worker
(1991 1996-97 (Rs/Ag
Census) Worker)
(1990-93)

277 Bihar Rohtas 20.4 37.50 5973

278 Assam Sonitpur 16.4 36.00 3834
279 Andhra Pradesh Kurnool 19.3 35.00 7131
280 Madhya Pradesh Ujjain 26.7 37.00 11916
281 Madhya Pradesh Shivpuri 30.7 48.00 6995
282 Rajasthan Dholpur 24.8 42.00 6623
283 West Bengal Maldah 24.6 38.00 9498
284 Bihar Kaimur (bhabua) 20.4 38.00 5973
285 Uttar Pradesh Gonda 16.0 35.00 4573
286 Madhya Pradesh Shajapur 24.7 35.00 11963
287 Andhra Pradesh Cuddapah 17.0 35.00 5615
288 Madhya Pradesh Mandsaur 20.7 37.00 7284
289 Madhya Pradesh Neemuch 20.7 37.00 7284
290 Tamil Nadu North Arcot / Vellore 22.3 34.00 11335
291 West Bengal Pargnas 24 North 23.8 42.00 6698
292 Karnataka Dharwad 14.7 33.00 5865
293 Karnataka Gadag 14.7 33.00 5865
294 Karnataka Haveri 14.7 33.00 5865
295 West Bengal Hoogly 28.2 43.00 9713
296 Andhra Pradesh Nizamabad 21.0 41.00 5502
297 Andhra Pradesh Karimnagar 21.3 40.00 6547
298 Uttar Pradesh Ballia 14.7 35.00 4854
299 Rajasthan Bikaner 18.9 37.00 7127
300 Bihar Begusarai 14.5 38.00 2681
301 Karnataka Hassan 18.5 35.00 8403
302 Rajasthan Barmer 21.6 45.00 3571
303 Bihar Gopalganj 13.3 33.00 5864
304 Tamil Nadu Chidambaranar / Tuticorin 17.4 33.00 9539
305 Andhra Pradesh Prakasam 23.6 43.00 7228
306 Madhya Pradesh Gwalior 23.3 38.00 10840
307 Uttar Pradesh Deoria 15.6 35.00 6694
308 West Bengal Darjeeling 29.9 50.00 7569
309 Madhya Pradesh Rajgarh 21.3 42.00 6767
310 Assam Golaghat 15.9 37.00 6158
311 Karnataka Bangalore Rural 15.8 38.00 5413
312 Bihar Buxar 14.7 38.00 4528
313 Bihar Bhojpur 14.7 38.00 4528
314 Assam Jorhat 19.7 40.00 7310
315 Tamil Nadu Pmthevar / Perambalur 16.1 40.00 4377
316 Assam Dhubri 7.2 31.00 3766

Report of the Task Force on "Identification of Districtsfor Wage and Self employment programmes", Planning
Commission, 2003
Actual State District Total SC Agri. Output /
Rank ST Pop. Wages Agri.
in %age (Rs/day) Worker
(1991 1996-97 (Rs/Ag
Census) Worker)
(1990-93)

317 Gujarat Banaskantha 17.5 34.00 10365

318 Gujarat Patan 17.5 34.00 10365
319 Rajasthan Jalore 26.2 50.00 5607
320 Karnataka Chikkamagalur 21.9 35.00 13622
321 Karnataka Koppal 21.9 35.00 13622
322 Uttar Pradesh Auraiya 25.0 46.00 8149
323 Uttar Pradesh Etawah 25.0 46.00 8149
324 Madhya Pradesh Morena 25.5 45.00 9346
325 Madhya Pradesh Sheopur 25.5 45.00 9346
326 Assam Silcer 16.1 36.00 8342
327 Andhra Pradesh West Godavari 20.3 41.00 8149
328 Karnataka Belgaum 13.7 33.00 8950
329 Bihar Nalanda 19.4 47.00 3212
330 Rajasthan Alwar 25.9 47.00 8699
331 Rajasthan Bharatpur 23.9 42.00 11034
332 Rajasthan Karauli 23.9 42.00 11034
333 Assam Kamrup 18.2 43.00 5655
334 Karnataka Mandya 14.5 38.00 6685
335 Rajasthan Churu 20.6 47.00 5129
336 Maharashtra Sindhudurg 5.6 30.00 5623
337 Uttar Pradesh Aligarh 23.0 46.00 8341
338 Uttar Pradesh Hathras 23.0 46.00 8341
339 West Bengal Murshidabad 14.7 41.00 5162
340 Rajasthan Sikar 16.7 45.00 4270
341 Rajasthan Pali 23.5 51.00 6041
342 Bihar Saran 11.8 42.00 3116
343 Assam Dibrugarh 12.0 33.00 10813
344 Assam Nagaon 13.3 40.00 6743
345 Uttar Pradesh Firozabad 19.3 46.00 8363
346 Uttar Pradesh Badaun 17.3 46.00 6817
347 Assam Tinsukia 8.0 40.00 3754
348 Maharashtra Kolhapur 13.2 40.00 8202
349 Uttar Pradesh Mainpuri 19.3 46.00 8886
350 Andhra Pradesh Krishna 19.1 47.00 8657
351 Uttar Pradesh Bullandshahr 21.0 46.00 11022
352 Tamil Nadu Periyar / Erode 18.0 47.00 7943
353 Uttar Pradesh Bareilly 12.7 40.00 8832
354 Maharashtra Raigad 15.6 50.00 3681
355 Uttar Pradesh Mathura 20.2 46.00 10683
356 Assam Barpeta 14.5 45.00 6857

Report of the Task Force on "Identification of Districtsfor Wage and Self employment programmes", Planning
Commission, 2003
Actual State District Total SC Agri. Output /
Rank ST Pop. Wages Agri.
in %age (Rs/day) Worker
(1991 1996-97 (Rs/Ag
Census) Worker)
(1990-93)

357 Uttar Pradesh Etah 17.3 46.00 8549

358 Tamil Nadu Dharmapuri 16.3 48.00 6388
359 Uttar Pradesh Shahjahanpur 18.0 46.00 10273
360 Uttar Pradesh Farrukhabad 17.6 46.00 10057
361 Uttar Pradesh Kannauj 17.6 46.00 10057
362 Punjab Hoshiarpur 33.3 54.00 17689
363 Punjab Nawanshahr 33.3 54.00 17689
364 Karnataka Shimoga 21.6 53.00 8693
365 Karnataka Udupi 21.6 53.00 8693
366 Uttar Pradesh Shaharanpur 22.5 46.00 15101
367 Gujarat Junagarh 9.4 38.00 10200
368 Maharashtra Akola 18.9 55.00 5489
369 Maharashtra Washim 18.9 55.00 5489
370 Assam Karimganj 14.3 50.00 5490
371 Karnataka Kolar 32.6 72.00 4426
372 Gujarat Mehsana 9.4 37.00 11465
373 Madhya Pradesh Bhind 21.6 55.00 8132
374 Rajasthan Jaisalmer 19.4 60.00 3081
375 Kerala Palakkad 17.4 52.00 7984
376 Gujarat Kutch 7.1 46.00 4006
377 Uttar Pradesh Bijnor 20.8 46.00 16615
378 Punjab Jalandhar 39.1 53.00 27035
379 Uttar Pradesh Gautam Budha Nagar 17.9 46.00 14477
380 Uttar Pradesh Ghaziabad 17.9 46.00 14477
381 Assam Hailakandi 12.2 50.00 6776
382 Uttar Pradesh Jyoti Phule Nagar 13.0 46.00 10713
383 Uttar Pradesh Rampur 13.0 46.00 10713
384 Rajasthan Ganganagar 29.9 50.00 22322
385 Rajasthan Hanumangarh 29.9 50.00 22322
386 Uttar Pradesh Pilibhit 16.1 46.00 13724
387 Gujarat Jamnagar 8.4 44.00 8805
388 Gujarat Porbandhar 8.4 44.00 8805
389 Uttar Pradesh Moradabad 16.1 50.00 11078
390 Gujarat Bhavnagar 6.1 43.00 9202
391 Maharashtra Solapur 16.9 62.00 4949
392 Gujarat Surendranagar 12.1 45.00 14248
393 Karnataka Uttara Kannada 8.3 53.00 6392
394 Andhra Pradesh Guntur 18.4 61.00 8994
395 Punjab Ropar 24.6 55.00 18838
396 Punjab Gurdaspur 24.7 55.00 19050

Report of the Task Force on "Identification of Districtsfor Wage and Self employment programmes", Planning
Commission, 2003
Actual State District Total SC Agri. Output /
Rank ST Pop. Wages Agri.
in %age (Rs/day) Worker
(1991 1996-97 (Rs/Ag
Census) Worker)
(1990-93)

397 Uttar Pradesh Bhagpat 16.6 50.00 16293

398 Maharashtra Ratnagiri 2.8 50.00 4707
399 Assam Sibsagar 7.4 40.00 16719
400 Kerala Idukki 19.3 50.00 19455
401 Gujarat Amreli 9.3 50.00 11151
402 Karnataka Dakshina Kannada 10.4 53.00 10066
403 Uttar Pradesh Muzaffarnagar 14.0 50.00 16037
404 Gujarat Anand 7.1 20.00 33823
405 Gujarat Kheda 7.1 20.00 33823
406 Haryana Ambala 23.0 60.00 19275
407 Haryana Panchkula 23.0 60.00 19275
408 Haryana Yamunanagar 25.0 57.50 23356
409 Haryana Panipat 17.9 60.00 18556
410 Kerala Kasaragod 10.3 53.00 18766
411 Haryana Mahendragarh 15.5 64.00 15095
412 Haryana Sonepat 17.8 60.00 21526
413 Punjab Moga 24.7 56.00 30986
414 Punjab Kapurthala 29.5 63.00 31246
415 Haryana Sirsa 26.7 60.00 31951
416 Kerala Kollam 12.9 70.00 12883
417 Haryana Bhiwani 19.0 75.00 15866
418 Haryana Kaithal 21.4 66.00 24803
419 Haryana Gurgaon 13.6 77.00 10875
420 Punjab Fatehgarh Sahib 23.6 62.00 32753
421 Haryana Karnal 20.0 65.00 27612
422 Punjab Bhatinda 29.3 69.00 32576
423 Punjab Sangrur 26.8 65.00 35284
424 Haryana Rewari 19.3 81.00 17008
425 Karnataka Kodagu 20.4 53.00 39861
426 Kerala Kottayam 8.4 75.00 13353
427 Punjab Mansa 29.3 73.00 32576
428 Punjab Faridkot 34.1 77.00 34470
429 Haryana Kurukshetra 19.3 67.00 31342
430 Haryana Jhajjar 18.4 92.00 12078
431 Haryana Rohtak 18.4 92.00 12078
432 Kerala Alappuzha 9.6 87.00 11253
433 Punjab Patiala 23.6 75.00 32753
434 Haryana Hissar 23.2 86.00 24983
435 Haryana Fatehabad 19.6 90.00 20203
436 Haryana Jind 19.6 90.00 20203

Report of the Task Force on "Identification of Districtsfor Wage and Self employment programmes", Planning
Commission, 2003
Actual State District Total SC Agri. Output /
Rank ST Pop. Wages Agri.
in %age (Rs/day) Worker
(1991 1996-97 (Rs/Ag
Census) Worker)
(1990-93)

437 Punjab Firozpur 21.8 72.00 37381

438 Punjab Mukatsar 21.8 72.00 37381
439 Kerala Kannur 4.9 74.00 23135
440 Tamil Nadu Kanniyakumari 5.1 92.00 9690
441 Kerala Eranakulam 8.8 91.00 15129
442 Kerala Pathanamthitta 13.9 112.00 10717
443 Kerala Wayanad 21.2 110.00 19289
444 Kerala Trissur 12.3 113.00 12368
445 Kerala Malappuram 8.6 117.00 11485
446 Tamil Nadu The Nilgiris 33.7 60.00 78424
447 Kerala Kozhikode 7.2 103.00 27564

Report of the Task Force on "Identification of Districtsfor Wage and Self employment programmes", Planning
Commission, 2003